题　名  瑕疵行政规章形态、成因及对策  
作　者  邵新怀  
作者单位  吉林大学,法学院,长春市 130012  
专　业  法学理论  
指导教师  崔卓兰  
学位级别  303  
馆藏索取号  3990392  
中文文摘  在我国,行政规章是法律体系的重要组成部分。它在行政管理活动中适用频率最高,越来越多的行政管理事项纳入行政规章调整之趋势有利于依法治国方略的实施。现实中的大量瑕疵行政规章产生的负效应也令人十分担忧,越来越多的瑕疵行政规章成为行政越权、弃权、违法、侵权和不当行政行为的主要方式和来源。归纳瑕疵行政规章的各种形态,剖析其成因,进而提出预防和矫正的对策,是一个极具现实意义的理论研究课题。
瑕疵行政规章可以概括为越权、弃权、侵权、违法及不当五种。越权行政规章指没有授权或超越授权的行政规章,逾越宪法、组织法对受权机关管理领域和职权范围的授权,可归为九种形态；逾越特定的法律、法规对受权机关专项事务的授权,可归为四种形态。弃权行政规章指对授权的内容、范围上进行了取舍的行政规章,表现为三种形态。违法行政规章的特征是与法律、法规的精神、原则和条文明显冲突、抵触,它有三种表现。侵权行政规章指行政规章的内容侵害了行政相对方的合法权益,具体表现为五种形态。不当行政规章指在形式上(有时也涉及某些内容)欠缺合理性的行政规章,主要有八种表现。以上五种瑕疵行政规章根据不同的特征而划分,又可归纳为三大类:第一类为越权行政规章,以没有法律、法规授权或超越授权为特征,无论是否明显不合法或背离法的精神、原则、内容,也无论是否出于善意而制定,终因无授权法为依据而被视为无效。第二类包括弃权、违法、侵权行政规章,较越权行政规章而言,其一是具有更为明显的不合法性质,与上位法直接抵触、冲突；其二,越权行政规章突出体现的是逾越了行政职权范围,弃权、违法、侵权行政规章主要的危险在于对行政相对方的权利造成不利影响；其三,越权行政规章的性质通常是违反宪法、组织法或相关的授权法,对其判定、宣布无效、撤销主要应由权力机关负责,而弃权、违法、侵权行政规章则多是违反行政法自身的原则、规范问题,对其认定及撤销的主体,最适合的是法院；第三是不当的行政规章。前两类行政规章具有实质性瑕疵,有必要对其做出完全否定的评价,并通过相应的国家机关依法撤销。最后一类行政规章属形式上存在瑕疵的行政规章,应通过补正使之得到修改和完善。
瑕疵行政规章源于行政机关制定行政规章行为的非科学化。而该行为非科学化的原因则是多层次、多方面的。主要原因有以下几个方面:
第一,行政权的特征及制定行政规章行为性质上的原因。行政权具有“扩张性、侵犯性、任意性的内在基因”,而行政机关制定行政规章的行为性质,既是从属立法行为,又是行使行政权的抽象行政行为。在制定行政规章时,行政权本身所固有的扩张性、侵犯性、任意性会顽强地发挥作用,导致行政规章内容与授权内容产生不统一甚至背离。
第二,行政机关地位及行政管理体制上的原因。行政机关是执行机关,是权力行使主体。这种地位决定其制定行政规章的动机、价值取向会有别于权力归属主体,所以其制定行政规章时会产生目标的偏离、异化。同时,行政管理体制和行政运行机制也影响行政规章的制定:权限不清导致制定行政规章难以服从客观性、科学性;权责不统一导致功利主义倾向；命令与服从式的运行机制影响行政规章的合法性与适度性；封闭式的行政运行机制使行政规章脱离实际；部门起草行政规章草案使行政规章框架服从于部门运行机制而丧失科学性；行政机关立法人员素质影响行政规章质量。
第三,传统法律思想原因。治民思想和特权思想带来行政机关优位理念和行政权力本位主义,颠倒了行政机关与社会的关系,使行政规章体现出重行政权力行使轻公民权利保护、重管理轻服务、重实体轻程序的倾向。
第四,行政法理论与行政立法制度原因。行政法实践缺乏理论指导,制约了行政规章实践。一是立法权限不清、授权不明,导致立法上的混乱；二是立法标准没有法律化、制度化,使行政规章的制定无统一的遵循；三是缺乏对行政规章的有效监督,导致对瑕疵行政规章预防不够、控制失序、纠正不力、制裁和救济贫乏。
第五,体制交替原因。良法的标准模糊不清,难以判断和把握其合理性,导致行政规章价值取向多元化；变革与立法的关系更为复杂化,行政规章难以适应；行政权力进入市场,本位主义盛行。
减少瑕疵行政规章的对策:
第一,完善立法制度。一是规范授权立法和明确立法权限,二是规范行政规章制定程序和标准。
第二,完善行政体制。一是理顺利益关系,转变行政机关经济职能；二是实现行政体制法治化、科学化。
第三,强化行政规章监督。一是确立行政规章监督的普遍性、明确性、系统性和公平与效率原则；二是改善权力机关的监督,重点设立专门监督机构,明确监督方式；三是完善行政机关的监督；四是改进司法机关监督。
第四,树立行政法治观念。一是依法行政观念,二是权利义务平衡观,三是服务意识。
最后,正确处理改革与立法关系。
本文首次对瑕疵行政规章形态、成因及对策进行了比较系统的研究。关于瑕疵行政规章的判断与分析很有新意；对瑕疵行政规章成因及对策的分析比较全面,有独到的见解和理论深度。研究成果有助于预防和矫正瑕疵行政规章,提高行政规章的质量,促进行政法治化,是行政法应用研究领域中的一项重要成果。

英文文摘  Administrative regulations, which are mostly used in administration, are important pails of law system in China. It helps realize the strategy of administering a country according to law that more and more administration items are brought into the adjustment of administrative regulations. A lot of actual defective administrative regulations have worrying side effects. More and more defective administrative regulations are beaming the main way and origin of overstepping the power, waiving the right, invading the right, breaking the law and being Improper. It is a very realistic theoretical research subject to classify defective administrative regulations, analyze the cause and put forward preventive and correct counter measures.
There are five types of defective administrative regulations: overstepping the power, waiving the right, invading the light, breaking the law and being improper Overstepping the power means those regulations without authorization or overstepping one''s authority. As to going beyond the authorized organs administrative fields and the scopes of their functions and powers empowered by the constitution and organic law, it has nine types, As to going beyond the authorization about special affairs m special laws and regulations. It has four types. Waiving the right me those that have been chosen about the authorization''s content and the scope, which has three types. Breaking the law means those that conflict clearly with the split, principle aid clause of the laws aid regulations, which has three types. Invading the right means those whose content invades the legal benefit of the other side，which has five expressions Being improper means those that lack rationality in forms (including some contents sometimes), which mainly has eight expressions. The above which are classified according to their different features can be also classified into three categories: 1. Overstepping administrative regulations, whose features are that they have no authorization by laws aid regulations or overstep the power. They are regarded invalid because of no basis from the authorizing law, regardless of their being obviously illegal or departing from the spirit pinci1ile and content，and  regardless of their being made out of goodwill 2. The regulations waiving the right, breaking dies law invading the right. 3. Improper regulations. It is necessary to deny them totally and revoke according to law through corresponding state organs just because the two formers have substantive defects.
Defective administrative regulations originate from no scientifically during the making of administrative regulations by administrative organs. 1. The features of administrative power and the nature of making administrative regulations.
2. The status of administrative organs and the system of administration. The administrative organs are both exercising organs and the subject, which decides that their motion and value inclination will be different from the power-owner.
3. Traditional law idea. The mentality of managing the people and "special privilege" bring priority and selfish d transposes the relationships between administrative organs and society, makes the administrative regulations show the tendency to value the administrative power and despise the citizen''s rights protection, think highly of management and look down upon service and take substance seriously and underestimate programmer.
4. The theory of administrative law and legislative system The practice of administrative law lacks the guidance of relative theories, which restricts the practice of administrative regulations.
5. Alternating systems. The unclear standard of good laws and the difficulty in judging and grasping their rationality lead to the diversifying value inclination in administrative regulations; the relationship between reformation and legislation is becoming more and more complex, to which the administrative regulations are hard to adjust; administrative power comes into market and selfish departmentalism prevails.
It is the first time that the article has studied systematically on the forms, the reasons and the countermeasures of defective administrative regulations. The judging and analyzing on defective administrative regulations are very original; The analyzing on the reasons and the countermeasures are very comprehensive, original and deep. The achievements are helpful to prevent and correct the defective regulations, improve the quality of administrative regulations and promote administrative law legality. The article is an important achievement in the applied research field of administrative law.

关键词  瑕疵行政规章,行政法,自由词  
分类标识  D912.1  
论文注解日期  19990415  
总页数  45P